Protecting Children isHuman Computer Interaction
Everyone’s Business
National Framework for Protecting
Australia’s Children 2009–2020
An initiative of the Council of Australian Governments
2 Protecting children is everyone’s business
© Commonwealth of Australia 2009
This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may
be reproduced by any process without prior written permission from the Commonwealth available
from the Commonwealth Copyright Administration, Attorney-General’s Department. Requests and
inquiries concerning reproduction and rights should be addressed to the Commonwealth Copyright
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2600, or posted at http://www.ag.gov.au/cca.
ISBN: 978-1-921380-35-8
3
Contents
Foreword 5
Why we need to work together to protect Australia’s children 6
What is the problem? 6
What needs to change? 7
A national approach to protecting Australia’s children 9
National Framework for Protecting Australia’s Children 11
Supporting outcomes, strategies and indicators of change 11
Principles to guide our actions 12
Everyone has a role to play 12
Supporting outcome 1: Children live in safe and supportive families and
communities 15
Supporting outcome 2: Children and families access adequate support to
promote safety and intervene early 17
Supporting outcome 3: Risk factors for child abuse and neglect are addressed 21
Supporting outcome 4: Children who have been abused or neglected receive
the support and care they need for their safety and wellbeing 25
Supporting outcome 5: Indigenous children are supported and safe in their
families and communities 28
Supporting outcome 6: Child sexual abuse and exploitation is prevented
and survivors receive adequate support 31
Implementing the National Framework 35
Governance arrangements 35
Implementation Plan 36
Evaluation 36
References 38
Appendix A: Current initiatives and reforms 42
Australian Capital Territory 44
New South Wales 47
Northern Territory 50
Queensland 53
South Australia 55
Tasmania 57
Victoria 60
Western Australia 62

Why we need to work together to protect Australia’s children 5
Foreword
Australia’s children deserve a safe, healthy and happy childhood.
Our children must be able to grow up nourished and supported in loving and caring
environments. They must have time to be children with all the wonder, happiness and innocence
that childhood should bring.
Over recent years the reported levels of child neglect and abuse in Australia have increased at
an alarming rate. Child abuse and neglect has become an issue of national concern. Meanwhile,
statutory child protection systems are struggling under the load.
Protecting children is everyone’s responsibility. Parents, communities, governments and business
all have a role to play.
Australia needs a shared agenda for change, with national leadership and a common goal.
All Australian governments have endorsed the frst National Framework for Protecting Australia’s
Children 2009-2020 and are committed to implementing the initial actions it contains. It is a
long-term, national approach to help protect all Australian children.
The National Framework represents an unprecedented level of collaboration between Australian,
State and Territory governments and non-government organisations to protect children. Placing
children’s interests frmly at the centre of everything we do.
Reducing child abuse and neglect is not an easy task and it will take time. The National
Framework provides the foundation for national reform.
Endorsed at the Council of Australian Governments meeting on 30 April 2009 by:
The Hon Kevin Rudd MP, Prime Minister of Australia
The Hon Nathan Rees MP, Premier of New South Wales
The Hon John Brumby MP, Premier of Victoria
The Hon Anna Bligh MP, Premier of Queensland
The Hon Mike Rann MP, Premier of South Australia
The Hon Colin Barnett MLA, Premier of Western Australia
The Hon David Bartlett MP, Premier of Tasmania
The Hon Paul Henderson MLA, Chief Minister of the Northern Territory
Jon Stanhope MLA, Chief Minister of the Australian Capital Territory
6 Protecting children is everyone’s business
Why we need to work together
to protect Australia’s children
All children1 have the right to be safe and to receive loving care and support. Children also have a
right to receive the services they need to enable them to succeed in life. Parents have the primary
responsibility for raising their children, and ensuring that these rights are upheld.
We recognise that the best way to protect children is to prevent child abuse and neglect from
occurring in the frst place. To do this, we need to build capacity and strength in our families and
communities, across the nation.
The vast majority of parents – supported by the community and the broad range of government
supports and services available to all families – have the capacity to raise happy and healthy
children. But some families need more help. And in some cases, statutory child protection
responses will be required.
The investment by governments and the non-government sector into family support and child
protection services is signifcant, yet our separate efforts still fail many children and young
people (Steering Committee for the Review of Government Service Provision 2009).2 We need
a unifed approach that recognises that the protection of children is not simply a matter for the
statutory child protection systems.
Protecting children is everyone’s responsibility.
Families, communities, governments, business and services all have a role. And we need to work
together.
What is the problem?
In 2007-08, there were 55,120 reports of child abuse and neglect substantiated by child
protection services.
For the frst time since national data collection there was a reduction in child abuse
substantiations from the previous year (2006-07). This is a promising indication that substantial
increases in family support may be effective at preventing child abuse and neglect. Data in
future years will tell us if this trend continues.
Despite this, the rate has more than doubled over the past 10 years and the number of children
subject to child abuse and neglect remains unacceptably high. Indigenous children also remain
signifcantly over-represented. Indigenous children are six times more likely to be the subject of a
substantiation than other children (AIHW 2009).
1 Australia is a signatory to the United Nations Convention on the Rights of the Child. In the Convention, the term ‘child’ is defned as
anyone under the age of 18 years. This National Framework follows that defnition.
2 The estimated total recurrent expenditure on child protection and out-of-home care services was $2 billion in
2007–08, an increase of 13.5 per cent on the previous fnancial year.
Why we need to work together to protect Australia’s children 7
Some of the increases over time are a result of changing social values and better knowledge
about the safety and wellbeing of children. Child protection services were originally established
in response to serious physical abuse. Now, in response to changing community expectations,
they address physical abuse, sexual abuse, emotional abuse, neglect and domestic violence.
These changes have been a major driver of increased demand on child protection services
(Bromfeld & Holzer 2008).
Emotional abuse and neglect are now the most commonly substantiated types of child
maltreatment, followed by physical abuse (AIHW 2009). However, research shows that many
children experience sexual abuse, and that it is often undetected or not reported to authorities
(ABS 2006; Morrison 2007).
As a community we have been shocked and concerned to hear of children who were not
identifed or adequately protected by welfare systems – for some, their suffering was not known
until after their deaths. Systems and procedures such as mandatory reporting requirements have
been developed to try to better identify those children who have experienced or are at-risk of
abuse or neglect. For many people concerned about a child or family, their frst (and perhaps only)
response is to make a report to child protection services (Bromfeld & Holzer 2008).
Substantial numbers of children and their families now come to the attention of child protection
services. In 2007-08, there were 317,526 reports to child protection services in Australia. The vast
majority of these reports were not substantiated – meaning the report was assessed and a child
protection response was not required at that time. In these cases, other forms of support would
have been a more appropriate response.
The numbers of children being removed from their parents has also more than doubled over the
past decade. At 30 June 2008, there were 31,166 young people in out-of-home care (AIHW 2009).
Children in out-of-home care experience signifcantly poorer long-term outcomes, particularly
where the child did not experience stable care placements (Cashmore & Paxman 2006). Each
year in a small number of terrible cases, children die as a result of child abuse and/or neglect.
The exact numbers are diffcult to ascertain due to reporting limitations.
What needs to change?
Australia needs to move from seeing ‘protecting children’ merely as a response to abuse and
neglect to one of promoting the safety and wellbeing of children. Leading researchers and
practitioners – both in Australia and overseas – have suggested that applying a public health
model to care and protection will deliver better outcomes for our children and young people
and their families (Holzer 2007; O’Donnell, Scott, & Stanley 2008; Scott 2006; ARACY 2007). The
components of such a system are illustrated in Figure 1.
Under a public health model, priority is placed on having universal supports available for all
families (for example, health and education). More intensive (secondary) prevention interventions
are provided to those families that need additional assistance with a focus on early intervention.
Tertiary child protection services are a last resort, and the least desirable option for families and
governments.
Just as a health system is more than hospitals so a system for the protection of children is more
than a statutory child protection service.
8 Protecting children is everyone’s business
Figure 1 – A system for protecting children
In reality, Australia’s child welfare service systems more closely resemble an hourglass than
a pyramid. As demands on child protection services have grown, the size of child protection
services have grown to meet that demand. Child protection services cannot provide a response
to all vulnerable children and their families.
A public health model offers a different approach with a greater emphasis on assisting families
early enough to prevent abuse and neglect occurring. It seeks to involve other professionals,
families and the wider community – enhancing the variety of systems that can be used to
protect children and recognising that protecting children is everyone’s responsibility (Higgins &
Katz 2008).
Ultimately, the aim of a public health approach is to reduce the occurrence of child abuse and
neglect and to provide the most appropriate response to vulnerable families and those in which
abuse or neglect has already occurred.
Why we need to work together to protect Australia’s children 9
A national approach for protecting Australia’s children
Australia needs a shared agenda for change, with national leadership and a common goal.
Recognising that the safety and wellbeing of children is the responsibility of all levels of
government, the Australian Government has led the development of the National Framework,
working closely with States and Territories.
Similar challenges are being faced across the nation. State and Territory governments currently
spend in excess of $2 billion annually on child protection alone, with average annual increases of
more than 12 per cent.
State and Territory governments are currently implementing reforms to their statutory child
protection systems – all focused on early intervention. But for these reforms to be truly effective,
they need to be coordinated with Australian Government programs, policies and payments – a
large part of the early intervention response.
The National Framework will deliver a more integrated response but does not change the
responsibilities of governments. States and Territories retain responsibility for statutory child
protection, as the Australian Government retains responsibility for providing income support
payments. The National Framework also recognises the signifcant existing efforts and reforms
which are being undertaken by governments across Australia in protecting children and
supporting families. A summary of existing effort and reforms underway in each State and
Territory is at Appendix A.
It does however, involve a commitment from all parties to focus our own efforts on protecting
children to, and work together better in areas of shared responsibility. It also involves a
commitment to better link the many supports and services we provide – avoiding duplication,
coordinating planning and implementation and better sharing of information and innovation.
Naturally, the span of activity required to support these outcomes means that new efforts will
build on and link with existing initiatives to achieve the best possible outcomes.
A National Framework provides an opportunity to drive improvements across all systems and
all jurisdictions. National leadership will provide the momentum for key national projects – such
as data, research, information sharing and national consistency in critical areas. A National
Framework also provides a mechanism for engaging the non-government sector and the broader
community on a national level.
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Why we need to work together to protect Australia’s children 11
National Framework for
Protecting Australia’s Children
The National Framework for Protecting Australia’s Children 2009-2020 consists of high-level and
supporting outcomes, strategies to be delivered through a series of three-year action plans and
indicators of change that can be used to monitor the success of the National Framework.
The actions and strategies that governments and others will agree to take under this National
Framework are all aimed to achieve the following high-level outcome:
Australia’s children and young people are safe and well.
As a measure of this outcome, governments and the non-government sector have set the
following target:
A substantial and sustained reduction in child abuse and neglect in
Australia over time. 3
To demonstrate progress towards achieving the target the following measures have been
identifed:
• Trends in key national indicators of children’s health, development and wellbeing
• Trends in hospital admissions and emergency department visits for neglect and injuries to
children under three years
• Trends in substantiated child protection cases
• Trends in the number of children in out-of-home care.
Supporting outcomes, strategies and indicators of change
The six supporting outcomes are:
1. Children live in safe and supportive families and communities
2. Children and families access adequate support to promote safety and intervene early
3. Risk factors for child abuse and neglect are addressed
4. Children who have been abused or neglected receive the support and care they need for their
safety and wellbeing
5. Indigenous children are supported and safe in their families and communities
6. Child sexual abuse and exploitation is prevented and survivors receive adequate support.
The supporting outcomes and strategies help to focus effort and actions under the National
Framework in order to reach the high-level outcome. Indicators of change are provided to
measure the extent to which governments and non-government organisations are achieving the
3 It is acknowledged that measuring a reduction in child abuse and neglect is diffcult, as Australia currently does not have robust data
on incidence/prevalence. Even if such data existed, it may not be sensitive to change over a short period.
12 Protecting children is everyone’s business
supporting outcomes. Given the inherent diffculties in isolating the impact of specifc actions
on broader social outcomes, a broad suite of indicators have been identifed which, when viewed
collectively, will be reported annually and provide a basis for measuring progress over the life (12
years) of the National Framework.
Principles to guide our actions
Children have a right to be safe, valued and cared for. As a signatory to the United Nations
Convention on the Rights of the Child, Australia has a responsibility to protect children, provide
the services necessary for them to develop and achieve positive outcomes, and enable them to
participate in the wider community.
In line with Australia’s obligations as a signatory to the UN Convention, the National Framework
is underpinned by the following principles:
• All children have a right to grow up in an environment free from neglect and abuse. Their best
interests are paramount in all decisions affecting them.
• Children and their families have a right to participate in decisions affecting them.
• Improving the safety and wellbeing of children is a national priority.
• The safety and wellbeing of children is primarily the responsibility of their families, who
should be supported by their communities and governments.
• Australian society values, supports and works in partnership with parents, families and others
in fulflling their caring responsibilities for children.
• Children’s rights are upheld by systems and institutions.
• Policies and interventions are evidence based.
The National Framework also recognises the importance of promoting the wellbeing of
Aboriginal and Torres Strait Islander children, young people and families across all outcome areas.
Everyone has a role to play
Under the National Framework for Protecting Australia’s Children, protecting children is everyone’s
responsibility. Some of the key groups and their involvement in the National Framework are
described below.
Parents and families care for and protect their children and engage in decision making that has
an impact on them and their children.
Children and young people participate in decisions affecting them.
Communities support and protect all their members, and support families to raise their children,
particularly vulnerable families.
Non-government organisations deliver services (including on behalf of governments), contribute
to the development of policy, programs and the evidence base and actively promote child safety,
protection, rights and wellbeing.
The business and corporate sector supports parents to raise their children through familyfriendly policies. They may also support programs and initiatives to directly assist children and
families, including direct fnancial assistance, pro bono activities of their staff and professional
support to community organisations.
National Framework for Protecting Australia’s Children 13
Local governments deliver a range of services to vulnerable families, including youth and family
centres and local infrastructure, and play a pivotal role in engaging vulnerable children and their
families in those services.
State and Territory governments deliver a range of universal services and early intervention
initiatives to prevent child abuse and neglect, and fund and coordinate many services by
the non-government sector. They are responsible for the statutory child protection systems,
including the support provided to children and young people in out-of-home care. Other
responsibilities include:
• providing therapeutic and support services for families, children and young people at-risk of
abuse or neglect
• conducting research into child protection
• delivering health and education services, including maternal and child health services,
schools, and specialist services for at-risk children and young people and their families
• providing police and justice systems, including court services to hear child/youth care and
protection matters.
The Australian Government delivers universal support and services to help families raise their
children, along with a range of targeted early intervention services to families and children. 4
The foundation of the Australian Government’s support is the provision of income and family
support payments to provide both a broad social safety net and specifcally support families in
their parenting role. This includes pensions, family payments, childcare beneft and tax rebates.
The Australian Government provides a range of services available for all Australian families such
as Medicare, employment services, child and parenting support services, family relationship
services and the family law system. In addition, the Australian Government provides support for
key services through the States and Territories such as hospitals, schools, housing and disability
services.
The Australian Government also offers more targeted services for vulnerable individuals and
families, including mental health, substance abuse, intensive parenting services, intensive
employment assistance, and allowances for young people leaving care to help with the
transition to independent living. The Australian Government also funds and delivers a range of
services for families at higher risk of disadvantage including those in Indigenous communities.
4 Families include foster, grandparent and kinship families
14 Protecting children is everyone’s business
National Framework for Protecting Australia’s Children 15
Supporting outcome 1:
Children live in safe and supportive families and communities
Communities are child-friendly. Families care for children, value their wellbeing
and participation and are supported in their caring role.
Reducing vulnerability of families and protecting children from abuse and neglect begins with
developing a shared understanding of, and responsibility for, tackling the problem of child abuse
and neglect.
Businesses and the broader community can play a part in supporting families through child and
family-friendly policies and practices. It is important to educate and engage the community to
influence attitudes and beliefs about abuse and neglect but also more broadly about children and
their needs. Informing communities about parenting and children’s development can also promote
understanding about the ways in which community members can better support families.
Upholding children’s right to participate in decisions that affect them is a key signal of valuing
and supporting children. In the context of child welfare, this is particularly relevant in judicial
proceedings in care and protection, juvenile justice and family court matters, and in child protection
and out-of-home care services.
16 Protecting children is everyone’s business

Supporting 0utcome 1
National Framework for Protecting Australia’s Children 17
Supporting outcome 2:
Children and families access adequate support to promote safety
and intervene early
All children and families receive appropriate support and services to create the
conditions for safety and care. When required, early intervention and specialist
services are available to meet additional needs of vulnerable families, to ensure
children’s safety and wellbeing.
The basic assumption of a public health approach to protecting children is that by providing the
right services at the right time vulnerable families can be supported, child abuse and neglect can
be prevented, and the effects of trauma and harm can be reduced.
Providing the right supports at the right time will also ultimately reduce demand on State and
Territory child protection systems, allowing them to improve their capacity to perform specifc
statutory functions and better support children at-risk.
National and international research shows that:
• families have strengths that can be built upon to keep children safe and well
• families may require advice and support, particularly in times of change
• provision of services early in a child’s life and/or early in the life of a problem can improve longterm outcomes for children and reduce negative impacts
• a focus on early intervention and prevention is more cost-effective in the long term than
responding to crises, or treating the impacts of abuse and neglect (Stronger Families Learning
Exchange 2002).
Disadvantage and vulnerability can be concentrated in particular communities. Evidence
from Australia (such as implications from the national evaluation of the Stronger Families and
Community Strategy) suggests that area-based interventions can have positive impacts on
vulnerable children and families. Effective elements include:
• an explicit focus on the coordination and collaboration of services by one organisation that is
given responsibility and resources to be a leader in this area in the community
• increased service provision and capacity to work with families previously disengaged from
early childhood services and those from groups traditionally considered ‘hard to reach’.
18 Protecting children is everyone’s business
Supporting outcome 2

National Framework for Protecting Australia’s Children 19

Supporting outcome 2 continued
20 Protecting children is everyone’s business

Supporting outcome 2 continued
National Framework for Protecting Australia’s Children 21
Supporting outcome 3:
Risk factors for child abuse and neglect are addressed
Major parental risk factors that are associated with child abuse and neglect are
addressed in individuals and reduced in communities. A particular focus is sustained
on key risk factors of mental health, domestic violence and drug and alcohol abuse.
Key to preventing child abuse and neglect is addressing the known risk factors. Many of the
factors that research has shown to be associated with abuse and neglect are behaviours or
characteristics of parents, which can then be the target of both population-based strategies and
specifc interventions.
The problems most commonly associated with the occurrence of child abuse and neglect and
identifed in families involved with child protection services are:
• domestic violence
• parental alcohol and drug abuse
• parental mental health problems.
Often, families in which parents experience these problems face broader challenges of exclusion
and disadvantage (Allen Consulting Group 2003; Leek, Seneque & Ward 2004; Wood 2008). Other
known risk factors for abuse and neglect include:
• poverty and social isolation
• unstable family accommodation and homelessness
• poor child and maternal health
• childhood disability, mental health and/or behavioural problems
• young people disconnected from their families, schools and communities
• past experiences of trauma (Fleming, Mullen, & Bammer 1997; Frederick & Goddard 2007;
National Child Protection Clearinghouse 2008).
Many families also experience more than one of these risk factors (Jeffreys, Hirte, Rogers &
Wilson 2009; Wood 2008).
Adult treatment or support services – particularly those addressing domestic violence, substance
misuse and mental health issues, as well as housing, gambling, disability, employment and
income support services – need to be more child-focused, and responsive to the needs of families
(Scott 2009).
These factors can also be the longer-term outcomes for children who have suffered abuse
and neglect, contributing to intergenerational cycles of disadvantage. Disadvantage can
be concentrated in neighbourhoods or geographic areas. Efforts to build and strengthen
communities and address economic and social disadvantage are important elements in an
overall approach to ensuring children’s safety and wellbeing.
22 Protecting children is everyone’s business
Supporting outcome 3

National Framework for Protecting Australia’s Children 23
Supporting outcome 3 continued

24 Protecting children is everyone’s business
National Framework for Protecting Australia’s Children 25
Supporting outcome 4:
Children who have been abused or neglected receive the support
and care they need for their safety and wellbeing
Children and young people who have been abused (or are at-risk of abuse) receive
timely, appropriate, high-quality child protection and other support services to
secure their safety and promote their long-term wellbeing.
Efforts to reduce the occurrence of child abuse and neglect are important. It is equally important
that those children who have experienced abuse and neglect are provided high-quality services
and interventions, as they are among the most vulnerable in our community.
To secure children’s safety and wellbeing in the short and long term they need high-quality child
protection services that are evidence based, child-focused, attend to children’s developmental
needs and help children to overcome the effects of trauma, abuse and neglect (Bromfeld 2008).
There is a need for further research and evaluation to ensure that services and interventions
provided actually work to improve outcomes for children and families (Bromfeld & Arney 2008).
Out-of-home care is viewed as an intervention of last resort, and the preference is always
for children to be reunited with their natural parents if possible. Many children can be safely
reunited with their families when their families receive appropriate supports and interventions.
Research highlights the need for children to have stable and secure placements, whether that be
with their natural parents or in out-of-home care. The quality of relationships with carers is also
critical. A sense of security, stability, continuity and social support are strong predictors of better
outcomes for young people’s long-term outcomes after leaving care (Cashmore & Paxman 2006).
Young people leaving care are at great risk of experiencing negative life outcomes (Bromfeld
& Osborn 2007). Care leavers can be better supported if they are equipped with improved
employment and independent living skills and more social and emotional skills while in care, and
the state continues to act as a ‘good’ parent in the frst few years after they leave care (Cashmore
& Paxman 1996; Maunders, Liddell, Liddell, & Green 1999; Mendes & Moslehuddin 2006).
While the need for foster carers has been rising, there has been some evidence of decreasing
numbers of individuals willing to foster (McHugh 2002; Siminski, Chalmers & McHugh 2005).
The attraction and retention of an appropriately skilled and qualifed workforce – including
statutory and non-government service workers, as well as voluntary carers – is a high priority.
26 Protecting children is everyone’s business
Supporting outcome 4

National Framework for Protecting Australia’s Children 27
Supporting outcome 4 continued

28 Protecting children is everyone’s business
Supporting outcome 5:
Indigenous children are supported and safe in their families and
communities
Indigenous children are supported and safe in strong, thriving families and
communities to reduce the over-representation of Indigenous children in child
protection systems. For those Indigenous children in child protection systems,
culturally appropriate care and support is provided to enhance their wellbeing.
Preventing child abuse and neglect and improving responses to those children who have
experienced maltreatment are priorities for all Australian children. However, those who are
particularly disadvantaged require additional responses. Aboriginal and Torres Strait Islander
children are signifcantly over-represented in all parts of the child protection system.
Indigenous communities experience intergenerational cycles of adversity and trauma, leading
to entrenched social problems including poverty, high levels of violence, psychological distress,
destructive behaviours, and individual, family and community dysfunction. These problems are
also associated with heightened rates of abuse and neglect (Atkinson 2002; Berlyn & Bromfeld
2009; Robertson 2000). Addressing Indigenous disadvantage is critical to addressing the factors
that put Aboriginal and Torres Strait Islander children at-risk of abuse and neglect.
Child abuse and neglect can be prevented by addressing disadvantage (for example, overcrowded
and inadequate housing); recognising and promoting family, community and cultural strengths
that protect children; and developing community-wide strategies to address specifc risk
factors where they occur in high concentration, such as alcohol misuse and family violence. It
is critical that approaches to address Indigenous disadvantage and the underlying causes of
abuse and neglect are holistic and culturally sensitive, and empower families and communities
to develop and take responsibility for community-identifed solutions (Aboriginal Child Sexual
Assault Taskforce 2006; Anderson & Wild 2007; Atkinson 2002; Gordon, Hallahan & Henry 2002;
Robertson 2000; Silburn, et al. 2006).
The best interests and safety of a child are paramount. Where Aboriginal and Torres Strait
Islander children cannot remain safely in the care of their parents or community, timely and
culturally appropriate responses for their care, protection and nurture are needed.
Maintaining connection to family, community and culture is essential within a framework that
respects the physical, mental and emotional security of the child. This is particularly important
in light of the historical experiences that Aboriginal families have had with child protection
agencies.
In order to provide culturally appropriate responses, strategies developed under the National
Framework need to be based on partnerships between Indigenous families and communities,
and between Indigenous agencies, mainstream service providers and governments. Strategies
should build on existing strengths, match expectations with appropriate supports, and recognise
the importance of Indigenous-led and managed solutions (Higgins 2005).
National Framework for Protecting Australia’s Children 29
Supporting outcome 5

30 Protecting children is everyone’s business
Supporting outcome 5 continued

National Framework for Protecting Australia’s Children 31
Supporting outcome 6:
Child sexual abuse and exploitation is prevented and survivors
receive adequate support
Children are protected from all forms of sexual exploitation and abuse through
targeted prevention strategies, and survivors are supported by the community, and
through specifc therapeutic and legal responses.
Strategies and services designed to support vulnerable families are important in preventing
maltreatment – especially neglect, emotional and physical abuse. However, child sexual abuse
may require a different response.
Perpetrators may come from inside or outside the family. Sexual abuse can also occur in a range
of settings, including the family home, friendship networks, schools, churches, community
organisations, and online. Legal responses to sexual abuse require the involvement of police and
criminal justice processes alongside child protection services; family law processes may also be
underway (Higgins 2007).
It is estimated that fewer than 30 per cent of all sexual assaults on children are reported and that
the reporting rate is even lower for Aboriginal and Torres Strait Islander children (Stanley, Tomison
& Pocock 2003). Sexual abuse specifc strategies are needed both to increase detection of child
sexual abuse and to prevent child sexual abuse across a range of settings.
The vast majority of child sexual abuse perpetrators are family members or someone well known
to the child or young person (Healey 2003). There is also increased reporting of children and
young people with sexually abusive behaviours and of sibling sexual abuse (Neave, Friedman,
Langan, & Little 2004). Risk factors for child sexual abuse are exposure to family violence, other
types of abuse and neglect, pornography, highly sexualised environments and inadequate
supervision (Boyd & Bromfeld 2006; Irenyi, Bromfeld, Beyer & Higgins 2006).
Raising awareness and knowledge in children and the broader community about risks can foster
protective behaviours and may help to increase detection of abuse. The importance of educating
young people about healthy relationships is increasingly being recognised. Raising awareness
about the role of the internet as a mechanism for the sexual abuse or exploitation of children
and young people is also a central focus. Organisations, businesses and institutions can also play
an important role in protecting children through the development of policies and procedures to
create child-safe organisations (Boyd & Bromfeld 2006; Irenyi et al. 2006).
32 Protecting children is everyone’s business
Supporting outcome 6

National Framework for Protecting Australia’s Children 33
Supporting outcome 6 continued

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Implementing the National Framework 35
Implementing the National
Framework
The National Framework is a 12-year overarching strategic framework for reform (2009-2012),
supported by rolling three-year action plans identifying specifc actions, responsibilities and
timeframes for implementation.
The task of ensuring the safety and wellbeing of all Australian children is a long and diffcult
one. The action plans provide a staged approach to achieving the necessary reforms identifed
within the National Framework. They also allow governments to address current and emerging
priorities, as resources permit. The Australian, State and Territory governments and nongovernment agencies are committed to working together to develop actions under these
triennial plans, implementing key actions and reporting on progress.
Governance arrangements
A focus on broader early intervention and prevention across a range of areas which impact
on the safety and wellbeing of children requires a move away from the traditional ‘single
agency’ approach for the ongoing management and monitoring of the National Framework.
The National Framework will require integrated governance arrangements that cut across
government boundaries and include the non-government sector in order to plan and implement
actions.
The Community and Disability Services Ministers’ Conference is responsible for the implementation of the National Framework. It will report annually to the Council of Australian
Governments on progress on the frst years, action plan and provide further action plans for
consideration.
In addition, a Ministerial Forum on Protecting Australia’s Children will be convened to bring
together Ministers with responsibilities under the National Framework. This Ministerial
Forum, hosted by the Community and Disability Services Ministers’ Conference, will also invite
contributions from non-government representatives, such as State and Territory Children’s
Commissioners and children and young people.
The Community and Disability Services Ministers’ Conference will continue to be supported by the
offcials’ forum – the Community and Disability Services Ministers’ Advisory Committee (CDSMAC)
to manage the National Framework.
A tripartite National Framework Advisory Committee will be established to advise on the
operation of the National Framework. This tripartite Committee will comprise CDSMAC offcials
with nominees from other sectors (such as health, education and justice) and non-government
representatives (such as leading academics, practitioners and peak organisations). Children and
young people are critical stakeholders who will need to be involved in this Committee through a
relevant representative organisation.
Supporting the formal governance mechanisms will be a series of working groups, with
members drawn from government and non-government organisations as appropriate. They will
be asked to assist with the development and implementation of specifc action areas or items.
36 Protecting children is everyone’s business
Implementation Plan
With the release of the National Framework the Australian, State and Territory governments will
work together to develop an Implementation Plan. The Implementation Plan will focus on the
actions agreed to for the frst three years and will outline their scope, resourcing and timing.
The Implementation Plan will be developed within three months and considered by the
Community and Disability Services Ministerial Advisory Committee at its August meeting.
The Implementation Plan will be a key tool in measuring progress of the National Framework. All
jurisdictions and stakeholders will be able to monitor progress against activities and milestones
outlined in the Implementation Plan. A set of performance indicators will be developed as part
of the Implementation Plan, providing another opportunity to monitor progress and outcomes.
Reporting processes for the National Framework will provide an opportunity to streamline
existing reporting processes to ensure greater levels of transparency.
As part of the Implementation Plan the options for a periodic information symposium will be
explored.
Evaluation
At the conclusion of the frst three year period (2012) the Community and Disability Services
Ministers’ Conference will seek an evaluation of the National Framework. Central to this
evaluation will be the collection and analysis of data against the outputs and performance
indicators identifed in the Implementation Plan, as well as the progress and performance
against each of the attached State and Territory action items.
The evaluation process will also draw from data collected and analysed in associated portfolio
areas, such as early childhood, housing and health.
Implementing the National Framework 37
38 Protecting children is everyone’s business
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42 Protecting children is everyone’s business
Appendix A
Current initiatives and reforms
The process followed by child protection agencies to deal with concerns about children involves:
• receiving reports of concern from mandated reporters or members of the public
(notifcations)
• gathering information to determine if an investigation is necessary and conducting an
assessment of the risk to the child and the needs of the child
• determining whether the report is substantiated (i.e. the child has been abused/neglected or
is at-risk of harm)
• determining whether the safety concerns for the child can be dealt with through referral to a
family support service, or whether the risk is so high that the child must be removed from the
family and placed in care.
These actions are defned in legislation and policy. Certain legislative principles are common to all:
• The child’s best interests are paramount. Interests of the parent/s or carers cannot override
this principle; nor can the Aboriginal placement principle.
• The Aboriginal placement principle requires that Aboriginal or Torres Strait Islander children
who are removed from home will be placed with their own family, community or other
Indigenous carer. This is achieved in 74 per cent of placements nationally.
In the last decade all State and Territory care and protection systems have undergone major
reviews. In most, but not all case, reviews have been triggered by revelations of severe abuse
and/or death of children in State care. There are a number of reforms which are common to all
systems:
• the safety and wellbeing of children is a shared community responsibility
• collaborative interagency partnerships and, in some instances, priority service to children and
young people in the care and protection system
• expanded role for non-government providers of family support and out-of-home care services
• strengthened requirements for the recruitment and training of foster and kinship carers
• charters of rights for children and young people in care
• children and families empowered to participate in decision making
• Children’s Commissioner and/or Children’s Guardian positions created to advocate for
children within systems, monitor the performance of child protection agencies and, in some
cases, monitor the performance of the out-of-home care system
• signifcantly increased investments in services available to vulnerable families and children
at-risk
• specifc services for Aboriginal and Torres Strait Islander clients established
Appendix A 43
• new service delivery models established so many children at-risk can be diverted from
statutory intervention. 5
Today, while many of the challenges have been tackled. A number remain, these include:
• reducing the incidence of abuse and neglect of children and young people across Australia
• working with Indigenous communities to address the complex causes of child abuse and
neglect 6
• recruiting/retaining people with specialised skills demanded in government, non-government
and carer workforces
• providing more therapeutic residential facilities for severely affected children and young
people who require intensive, sustained interventions
• building local evidence of the extent of child abuse and neglect within Australia and what
works to prevent it – for both Indigenous and non-Indigenous populations
• developing service standards so that any child or young person entering the child protection
system, or care, receives quality care
• removing barriers to improved information sharing and comparable national data collections
• creating a strong and responsive network of services (universal, secondary and tertiary) that
are accessible, inclusive and non-stigmatising
• improving the care options available and increasing the stability of placements
• building capacity in families, communities and services
• providing much more support in the transition to independent living for young people leaving
care at age 18.
The National Framework for Protecting Australia’s Children will align with existing
initiatives and reforms. Some of the current Australian, State and Territory key reforms
and initiatives are described. Further mapping and alignment will take part throughout
the life of the National Framework.
5 Victoria led the way for other jurisdictions in this regard, when its research showed that 1 in 5 Victorian children would be reported
to child protection authorities if the trends in notifcations of recent years were allowed to continue (ChildFIRST program in
Victoria).
6 In this context, it should be noted that neglect is by far the biggest causal factor for involvement in the child protection system for
all children.
44 Protecting children is everyone’s business
AUSTRALIAN CAPITAL TERRITORY
Agency functions
The functions of the ACT Department of Disability, Housing and Community Services cover care
and protection of children at-risk of harm, youth justice, early intervention services, out-of-home
care services, Indigenous policy and programs, adoption, children’s services, therapy services for
children, disability services, women’s policy, disaster recovery, multicultural policy and public
housing (including services to homeless people).
Care and protection services are delivered from a centralised location which operates intake,
assessment using a differential response model, substantiation and referral functions. Two
regional Child and Family Centres offer midwifery baby health clinics, targeted playgroups,
parenting skills development programs, and case management for vulnerable families.
Outposted child protection offcers, located in the two Child and Family Centres, work
collaboratively with the government and non-government sector to provide early intervention
services. The Department funds a number of home care agencies and sets standards and
regulates their operations.
The Offce for Children, Youth and Family Support (OCYFS) and the non-government sector
provide an Integrated Family Support Project (IFSP). The IFSP is a joint initiative between the ACT
Government, Australian Government and the non-government sector across the ACT targeting
children under 8 years and their families who have multiple and emerging diffculties. The aim
of the project is to divert families from the statutory system and prevent re-entry using a case
coordination framework.
Major recent and planned reforms
• Children’s Plan Services
• Early Intervention and Prevention Unit established
• Established new Child and Family Centres to provide universal and targeted services
• Established the Indigenous Integrated Service Delivery Program
• In partnership with SIDS and Kids, developed easy to read messages and pamphlets on
‘safe sleeping’ have been developed
• Therapy ACT
• Service development for children by
• Establishing Early Learning Centres and Child and Family Centres
• Child Protection Reform
• Established the IMPACT Program to provide a coordinated service for pregnant women,
their partners and their children under two years of age
• Established the Integrated Family Support Project for families at-risk of entering the
statutory system
• Reformed Child Protection legislation
• Reforming Out-of-home Care Program including a new framework which articulates
contemporary service models
Appendix A 45
• Information exchange and established Care Teams.
• New Out-of-home Care Standards developed.
• A ‘Time to Fly’ leaving care kit developed
• Legislative requirements for day care planning
• Child Protection Protocols in cooperation with other government agencies
• Sharing Responsibility: A Framework for Service Collaboration for the Care, Protection and
Wellbeing of Children and Young People in the ACT outlines the responsibilities of the ACT
Government and its approach to working together for the care and protection of children and
young people in the Territory.
• Supervision Framework with Supervision Standards developed to support clinical staff in
their roles as practitioners
• A compliance framework that will include the development of a compliance auditing
and quality assurance process with the developmentof compliance monitoring tools and
applications
• A newly developed and implemented Case Management Framework to provide more
integrated and collaborative responses within the government and non-government
sector
• The development of a Neglect Policy to better support staff in identifying and dealing with
this form of abuse
• Establish a vulnerable Families Project focussing on care co-ordination, referral pathways
and information exchange
• Protocols for the Interstate Transfer of Care and Protection Orders Protocol
• A complex case review panel to provide a forum for care and protection caseworkers to
present and discuss cases with signifcant complexity with a panel of professionals.
Reforms since 2000
A review of child protection services in the ACT in 2004 led to the Government adopting and
implementing a 3 year reform program from August 2004, in which the primary goals were:
• to improve the quality standards for care and protection services and immediately expand
services targeted at children and young people most at-risk of entering the care and
protection system
• to develop a continuum of early intervention and prevention services from birth to 18 years.
Practical measures to achieve these goals have included:
• DHCS’ second wave of overseas recruits to Care and Protection positions was undertaken in
2008 resulting in a full complement of staff being achieved in Care and Protection Services
• strengthening accountability measures including the development of a complementary
auditing and quality assurance process
• establishing new and better partnerships between government and non-government
agencies
• expanding community education and awareness of child safety and wellbeing
46 Protecting children is everyone’s business
• improving training for foster carers
• developing specifc responses to meet needs of Aboriginal and Torres Strait Islander children,
including establishing a specifc functional unit with the department
• establishing the Offce of Commissioner for Children and Young People and promoting the
participation of children and young people in decision making
• exchange of staff between ACT Health and DHCS
• introducing an interagency agreement for service provision to clients with high level, complex
needs
• reviewing Children and Young People legislation in 2005 and again in 2008. The frst review
introduced the concept of child or young person at-risk of abuse and neglect; clarifed who
mandatory reporters are; protection and release of information; principles to safeguard
culture and community connections for Indigenous children and young people. The second
review led to the development of the new Children and Young People Act 2008 and introduced
signifcant reform to the law relating to children and young people in the ACT, particularly in
the areas of care and protection including in-utero reporting, youth justice, the regulation of
childcare services and employment.
Reforms for the future
• Legislation provides for new OOHC standards – these are currently being developed.
• Continuing with work to improve interactions between care and protection and the legal
system, including the Court
• Case Management Framework supporting improved work practices
• Common Assessment Framework is being piloted and will provide a common method of
assessment that can be used across all agencies
• Compliance Framework for the Children and Young People Act 2008 is currently being
developed.
Appendix A 47
NEW SOUTH WALES
Agency functions
The NSW Department of Community Services (DoCS) functions cover care and protection of
children at-risk of harm, early intervention services, out-of-home care services, adoption, children’s
services, disaster recovery, and services to homeless people. DoCS’ services are available through 7
regional offces and 86 community services centres across the state.
Major recent and planned reforms
Following the Special Commission of Inquiry into Child Protection Services in NSW, the NSW
Government response, Keep Them Safe: a shared approach to child wellbeing 2009-2014 was
released on 3 March 2009. Keep Them Safe is a fve-year action plan that aims to build a stronger,
more effective child protection system in NSW.
A key objective of Keep Them Safe is to create an integrated system that supports vulnerable
children, young people and their families. This includes the establishment of new reporting
and referral arrangements to allow families to access appropriate services from government
agencies and non-government services without having to come in contact with the statutory
child protection system. The establishment of alternative service pathways is a similar approach
to that adopted by some other jurisdictions, including Victoria.
Key reforms contained within the NSW Government action plan include:
• Establishing Child Wellbeing Units in NSW Health, NSW Police, the Departments of Education
and Training, Housing, Ageing, Disability and Home Care and Juvenile Justice, to advise
mandatory reporters within these agencies on the new statutory reporting threshold of “risk
of signifcant harm” and to assist in responding to matters which do not meet this criteria
• Expanded services and a focus on prevention and early intervention, including:
• expanding the Brighter Futures early intervention program to support vulnerable families
with children aged 0-8 by providing access to a range of services, including quality child
care, case management, parenting program and home visiting. Consideration will also be
given to extending Brighter Futures to 9-14 year olds, including priority access for Aboriginal
children and their families, following examination of the evidence base
• extending intensive family preservation services to support families whose children are atrisk of entering out-of-home care
• continuing to trial Sustained Health Home Visiting, with further expansion to be
considered in 2010, which employs specialist child and family health nurses to work
intensively with high needs families in pregnancy and during the frst two years of a
child’s life
• employing additional Home School Liaison Offcers to work with families where there are
concerns about non-attendance at school
• A new partnership with, and an enhanced role for, the non-government sector, including:
• funding NGOs and/or local councils to establish new Regional Intake and Referral services.
These organisations will work with the Child Wellbeing Units to improve access to
services for children and families. Three initial Regional Intake and Referral services will be
established in 2009
48 Protecting children is everyone’s business
• enhancing the role of the NGO sector in the delivery of OOHC and the Brighter Futures
early intervention program
• investing in capacity building and reform of funding arrangements. In particular, the
Government will work with Aboriginal communities and organisations to support
communities to address the unacceptable overrepresentation of Aboriginal children
and young people in the child protection system. Priority work will be undertaken with
Aboriginal organisations to build their capacity to play an enhanced role in the provision of
out-of-home care and other services.
Reforms since 2000
The Children and Young Persons (Care and Protection) Act 1998 was implemented in stages from
2000, and reviewed in 2005-2006.
• Brighter Futures early intervention program, introduced in 2002, is a voluntary program
providing targeted, tailored support to vulnerable families with children aged under nine
years, or who are expecting a child
• Aboriginal Intensive Family Based Service is a unique strengths-based service targeting high
risk children. The program provided support to 175 children in 2007-08
• Families NSW brings relevant government agencies together to provide support to families
raising children up to 8 years of age. DoCS provided $5.2 million over four years to roll out
the Triple P parenting course to all parents with children 3-8 years. First courses began in
September 2008. By 2011, 1200 health, welfare and education professionals will be accredited
in use of this program
• Preschool Investment and Reform Plan $85 million additional funding for DoCS will provide
expansion of the preschool program throughout the children’s services sector; 10,500
additional children will attend preschool for two days a week in the year before they start
school
• Aboriginal Maternal and Infant Health Strategy,jointly funded by DoCS and NSW Health,
was implemented across the State. The strategy is aimed at improving the health of
Aboriginal mothers and their newborn babies by providing accessible, culturally appropriate
maternity care programs for women and their families. Since its introduction in 2000, the
strategy has achieved remarkable outcomes such as halving the rate of premature birth and
perinatal mortality, improving breast-feeding and increasing access to antenatal care early in
pregnancy
• Collaboration is promoted through the following interagency plans and processes
• Joint Investigation Response Teams (JIRT) with DoCS, police and health, who investigate
cases of child abuse that may constitute criminal offences. in 2007-08, 3,000 such cases
were referred
• a new policy trialled in 2008 to improve collaboration between DoCS and NSW Health, to
support at-risk pregnant women. A joint evaluation is scheduled for 2009. Both agencies
have funded statewide expansion of the NSW Aboriginal Maternal and Infant Health
strategy
• NSW Interagency Guidelines for Child Protection Intervention 2006 (frst introduced in 1991)
were updated and evaluated
Appendix A 49
• Interagency Plan To Tackle Child Sexual Assault In Aboriginal Communities 2006-2011
contains 88 actions to prevent child sexual assault in Aboriginal communities and improve
the way services are planned, coordinated and delivered to victims and their families, with
a budget of more than $52.9 million over four years.
50 Protecting children is everyone’s business
NORTHERN TERRITORY
Agency functions
The Department of Health and Families includes the Northern Territory Families and Children’s
Division (NTFC), the responsible agency in the Northern Territory for child protection, out-ofhome care, family and parenting support, support for individuals and families in crisis including
those who are homeless or at-risk of homelessness, women’s policy, victims of domestic or
family violence or sexual assault, youth services including youth diversion services, and adoption.
Mandatory reporting is universal in the Northern Territory. This contrasts with all but one other
jurisdiction, where only specifed categories of employees are required by law to report child
abuse.
The Care and Protection of Children Act 2007 provides the legal framework for care and protection
services, screening for child related employment, employment of children, prevention of child
deaths and regulation of children’s services, and establishes a Child Death Review Committee
and the post of Children’s Commissioner. The Act requires decisions to be made in the best
interests of the child, and describes the considerations that apply in making such a decision. The
Act requires children to be treated with respect and to participate in decisions affecting them.
Specifc provisions relate to the treatment and placement of Aboriginal children. The Act provides
for access to support for young people leaving care up to age 25.
Major recent and planned reforms
• Child Abuse Taskforce including Aboriginal Community Resource workers
• Co-located NTFC child protection workers in Indigenous Targeted Family Support Service
organisations
• Mobile Response Teams able to be deployed as needed to relevant communities
• Remote Aboriginal Family and Community Workers
• Structured Decision Making tools and systems
• Secure Care initiatives for high-risk young people
• Linked up for Safe Children initiative to coordinate local solutions across the government and
non-government sector using a place-based framework
• Family Group Conferencing with an emphasis on providing a culturally secure approach to
developing plans for the wellbeing of children at-risk
• Child Protection research partnership with the Menzies School of Health Research
• A Practice Advisor initiative to support case work practice
• A network of Safe Houses established in key communities
Reforms since 2000
The child protection system in the NT has undergone signifcant change since 2003 when the
Caring for Our Children reform agenda was announced. Two critical elements of this reform
agenda were the introduction of new legislation and the development of different responses
to vulnerable children and families through the implementation of a Differential Response
Framework.
Appendix A 51
In 2006 the Board of Inquiry into the Protection of Aboriginal Children from Sexual Abuse (the
Inquiry) was established by the Northern Territory Government. The Inquiry’s subsequent report
(Anderson & Wild 2007) – the Little Children are Sacred report – supported legislative and systemic
reforms in the NT as critical child protection measures. Report recommendations focused on the
priority action areas including:
• education (getting children to school is vital; at school they are safe) and education
campaigns to raise awareness of child sexual abuse and how to respond to it
• reducing alcohol consumption
• improving family support services
• empowering Aboriginal communities
• creating a position of Commissioner for Children and Young People
In response, the NT Government developed a generational plan of action (Closing the Gap) to
combat Indigenous disadvantage, with funding of $286.43 million over 5 years for initiatives
across child protection, family violence, policing, justice, alcohol and drugs, health, housing,
education, jobs, and culture. Since 2007, the Australian Government Northern Territory
Emergency Response (NTER) and the Northern Territory Government’s responses through Closing
the Gap have contributed to the strength and direction of reforms in the child protection system.
Major provisions of the Care and Protection of Children Act 2007 (CPCA) were introduced in late
2008. This legislation makes provision for the development of many new initiatives including:
• a Children’s Commissioner
• Working with Children checks for all people working in child-related employment
• mediation / family group conferencing
• child Safety Review Teams
• leaving Care support
In addition the CPCA provides the legislative basis for increased interagency collaboration in child
protection by supporting the sharing of information between agencies and the development
of different responses to child protection reports. The NT Differential Response Framework (the
Framework) envisages low risk high needs families being referred to support agencies rather
than being the subject of forensic child protection investigation. The Framework is being rolled
out in a number of NT centres through the funding and establishing of Targeted Family Support
Services (TFSS) to respond to the needs of these families.
The development of Aboriginal Child Protection and Family Support Services by Aboriginal
agencies is a key focus in the NT’s reforms and in particular the Northern Territory Government
has focused on supporting Aboriginal agencies to develop TFSSs. Additionally, Remote Aboriginal
Family and Community Workers are being based in a number of major remote Aboriginal
communities. NTFC is undertaking a place-based approach to the development and delivery of
services for families in remote communities and is planning to engage with communities to
ensure that new services meet the needs of the community and that NTFC funded services are
linked up with services in the areas of child care and health.
52 Protecting children is everyone’s business
Forensic responses have been strengthened through the establishment and ongoing
development of co-located NTFC/Police teams, mobile response teams, and increasing resources
within child protection offces including stronger risk management and decision making
frameworks for child protection and out-of-home care (OOHC) through the introduction of a
suite of assessment and decision making tools
More therapeutic responses and a greater range of options for children in OOHC are being
developed through the provision of Specialist Care placements, therapeutic services to children in
care and the development of secure care options in line with the OOHC Strategic Plan.
Appendix A 53
QUEENSLAND
Agency functions
The Department of Communities includes Child Safety Services, which provides statutory child
protection services delivered under the Child Protection Act 1999, foster and kinship care and
adoption services and has 49 metropolitan and regional Child Safety Service Centres.
The Department of Communities includes Community Services, which has responsibility for
delivering early intervention and family support services.
Major recent and planned reforms
• One Chance at Childhood initiative, a specialist program to secure safety and stability for
babies and toddlers in the child protection system
• Establishment of Safe Houses in Aboriginal and Torres Strait Islander communities to provide
on-community placement and support services for children and families subject to statutory
child protection
• Establishment of Therapeutic Residential Services to provide an intensive therapeutic
environment to support young people to recover from the impact of physical, psychological
and emotional trauma and pain experienced from abuse and neglect
• Suspected Child Abuse and Neglect (SCAN) system to provide a multi-agency response to the
protective needs of children within the tertiary child protection system
• Establishment of Early Years Centres providing a ‘one-stop-shop’ where early childhood
education and care, family support and health services are available for families expecting a
child or with children aged up to eight years
• Referral for Active Intervention Services for families at-risk of entering statutory child
protection services
• Evolve Therapeutic and Behaviour Support Services for children with complex and extreme
emotional and behavioural issues
Reforms since 2000
• The Queensland Government has undertaken signifcant reform of its tertiary child protection
system in recent years. Children in care now have education and health plans and a range of
new services to support the wellbeing of children in care.
• Foster carers are supported with increased allowances, enhanced foster carer training, an after
hours carer helpline and a carer handbook setting out carer rights and entitlements.
• Referral for Active Intervention services provide intense family support for families of children
at-risk of entering out-of-home care.
• Recognised Indigenous entities are funded to provide support and advice about child
protection decisions and placements for Aboriginal and Torres Strait Islander children.
• The Child Safety Practice Manual, Structured Decision Making tools and the statewide
Integrated Client Management System have enhanced the quality of child protection practice
and the capacity of child protection staff to manage their cases.
54 Protecting children is everyone’s business
• A range of specialist positions support quality practice, including court coordinators,
recordkeeping offcers, early childhood experts, family group meeting coordinators and
therapeutic and behavioural support professionals.
• The Queensland child protection system is more accountable, overseen by the Commission
for Children and Young People and Child Guardian and the external child death case review
committee.
• Child protection offcers today receive enhanced training, incentives and support to attract
and retain staff, particularly in rural and remote areas.
Appendix A 55
SOUTH AUSTRALIA
Agency functions
The South Australia Department for Families and Communities (DFC) is responsible for child
protection, family support, out-of-home care, young offenders, adoption, refugee children,
support to families in poverty, and disaster recovery. Services are delivered through 18 district
centres across three regions.
The safety and wellbeing of children is considered a shared community responsibility. Accordingly,
government continues to work towards greater collaboration between government agencies
(particularly health, education and police), with the non-government sector and with families.
Major Recent and Planned Reforms
• New targeted early intervention initiatives
• New family preservation and reunifcation initiatives;
• A new integrated child and family case management system
• New models for out-of-home care
• Reshaping the child protection system towards relationship based practice
• Children’s Centres that bring together health, education, community and family services for
families and their children aged 0-8 years
• Whole of government protocol for sharing information where a child is at-risk
• New responses to drug and alcohol related concerns for the care and protection of children
• The Keeping Them Safe – in Our Care strategy will continue in 2008-09 with more community
based services to support families who are subject to child protection notifcations, to
stabilise the family situation and enhance parenting capacity, and to develop intensive family
preservation services for families with children at high risk of entry to alternative care, and to
return those children who are in alternative care to the safe care of their family.
Reforms since 2000
In 2002, the government commissioned Robyn Layton, QC, to conduct a Review of Child
Protection in South Australia.
The Government responded to the recommendations of the Review with Keeping Them
Safe: the South Australian Government’s child protection reform program. The reform agenda
prioritises children’s safety and wellbeing and promotes greater collaboration between
government agencies, with the non-government sector and with families. The program included
amendments to the Children’s Protection Act 1993 (proclaimed in 2006) that were proclaimed in
2006 that:
• prioritise the care and protection of children as the frst consideration in all planning and
decision making
• provide a stronger commitment to make sure that children and their families have access to
support services
• build community capacity to protect children through the establishment of child safe
environments
56 Protecting children is everyone’s business
• establish common standards across all sectors for criminal history checking
• extend mandatory reporting of suspected child abuse
• establish the Offce of the Guardian for Children and Young Persons to promote the best
interests of children under guardianship of the Minister
• establish the Council for the Care of Children to review the operations of legislation, and
report to and advise the Minister on all matters affecting the safety of children
• establish the Child Death and Serious Injury Review Committee to review the circumstances
and causes of deaths and serious injuries to children and make recommendations to
Government.
In 2005 South Australia established Rapid Response: Whole of Government Services – a Framework
and Action Plan with the aim of ensuring that children and young people under the guardianship
of the Minister for Families and Communities receive the supports and services available to
those with strong family networks through priority access to government funded services. Part
of the focus of Rapid Response is the provision of transition planning from care, including the
provision of post Guardianship supports and services.
In 2008 $192 million was committed over four years to the Keeping Them Safe – In Our Care
strategy. It emphasises early intervention, early years services, whole child within family
context, and ‘joined up’ government responses. Reforms through the Stronger Families Safer
Children program emphasise strengthening families and keeping them together wherever
possible; tackling problems and building capacity in families; providing stable, high-quality
care; individualised and integrated care plans; taking better care of children with complex
needs; training carers and keeping them informed; better remunerating carers; and helping
grandparent carers access services for children.
Policies, procedures, practice frameworks and practice guidelines are undergoing considerable
review and development across all aspects of the care and protection process to support the
substantial reforms.
Aboriginal-specifc initiatives include:
• embedding the Aboriginal Child Placement Principle in legislation and policy
• a dedicated Aboriginal service providing advice and assistance on abuse and neglect of
Aboriginal children
• a specialist metropolitan-based team of Aboriginal service providers delivering targeted
youth work services
• the Aboriginal Culture and Identity Program which supports preservation of family and
cultural ties for Aboriginal children and young people who are under the Minister’s
guardianship.
In April 2008 SA Parliament received the Children in State Care Commission of Inquiry Report
(the Mullighan report) on abuse of children in care from Commissioner The Hon E.P. Mullighan
QC. The Government responded initially with services for survivors of abuse and neglect and
made compensation available to adult victims. Commissioner Mullighan also investigated
allegations of child sexual abuse on the APY lands. The Government is progressing responses to
Commissioner Mullighan’s recommendations including proposals for legislative reform.
Appendix A 57
TASMANIA
Agency functions
The responsibilities of the Department of Health and Human Services (DHHS) cover a broad
range of services including both acute and primary health care as well as mental health and
drug and alcohol services, and human services. Human Services comprise Housing Tasmania
and Disability, Child, Youth and Family Services, which are delivered through four area offces. As
part of a staged reform process commencing in 2009 some human services will be delivered by
the non-government sector. Ongoing partnership arrangements between the Department and
service providers will ensure that services are coordinated with a client focus and quality assured.
The Tasmanian Government both provides and funds a range of services to ensure that children
and families are supported, particularly in the early years. These are delivered through the
universal Child Health and Parenting Services (DHHS); the Department of Education (Launching
into Learning); and an array of non-government organisations. Tasmania recognises the need
to strengthen parenting capacity and family functioning, as well as the importance of early
intervention and the need to monitor any potential for cumulative harm in family circumstances
that are less than ideal.
As well as this, the Children, Young Persons and Their Families Act 1997 mandates that all adults
have a responsibility to report suspected abuse or neglect of a child; and certain “prescribed
persons”, such as health sector staff, teachers, people who work with children, must report
concerns or face a penalty. The legislation describes the safety and wellbeing of children as
a shared community responsibility; has a focus on taking on the viewpoint of the child; and
includes principles of the best interests of the child and Aboriginal placement.
This legislation is complemented by the Safe at Home Program, an integrated whole of
Government response to family violence in Tasmania. Safe at Home is enabled by the provisions
of the Family Violence Act 2004. In 2008 the Tasmanian Safe at Home Program was the National
Winner of the Australian Crime and Prevention Award.
The Tasmanian Commissioner for Children examines legislation, policy and practices that affect
the health, welfare, care, protection and development of all children to help ensure they operate
in the best interests of the child. Children includes all children and young people under the age of
18 years.
A series of recent reviews revealed a system with limited capacity to respond to the needs of
children, young people and families. Services were not reflecting current research fndings
about early brain development and the need for a focus on prevention and early intervention to
alleviate the stress on the tertiary system. As a result, Tasmania wanted to adopt well researched,
outcome-focused service models from other jurisdictions.
Major recent and planned reforms
• Establishing Community Gateway Services to provide a single community entry point in each
area which will enable children and families to ask for support (and other professionals to
refer them for support) through the Community Gateways without reference to the child
protection system.
• Establishing integrated family support services in each of the four areas in Tasmania.
• Establishing 30 child and family centres across Tasmania, with construction on the frst eight
to begin in 2009.
58 Protecting children is everyone’s business
• Reforming out-of-home care services and disability services including funding to have these
services provided by the non-government sector.
• Staged implementation of a new Child Protection Information System (CPIS) from 2008. The new
system has given Child Protection Services an increased capacity to manage the entry, allocation
and approval of notifcations and investigations.
• Integrating local services.
• Introducing the Tasmanian Child Protection Practice Framework based on New Zealand research
and practice.
Reforms since 2000
The primary aims of Tasmania’s reforms have been to meet the needs of children, young people
and their families; to identify and support children and young people at the highest risk of abuse
or neglect; to be culturally responsive and strengths and evidence based; and to build a more
responsive system through greater use of non-government family services.
Four regional service centres have been created to replace the centralised intake. Each service
centre is required to develop a network of service supports building on existing resources (health
services, schools, police etc.). Over time these service centres and networks will integrate with the
Community Gateways providing a community intake point for children and young people at-risk.
A co-located child protection worker will assist with this process.
The aim of the coordinated children and family services is to:
• focus on early intervention and prevention
• create system capacity to respond to needs of vulnerable families
• monitor cumulative harm
• provide therapeutic services where required
• use coordinated planning for intervention and integrated responses.
Because of the overall focus outlined above, Child Protection Services is able to target the more
serious cases of abuse and neglect. Further, in 2008 Child Protection Services adopted a response
model which reorientates staff into three teams: intake, response and case management. Intake
has been decentralised to each area and intake teams work with senior child protection staff to
determine which cases require a child protection response, while the response team is required to
conduct an assessment of the risk to children in a way that is timely (completed within four weeks).
A fve-year reform plan for out-of-home care services commenced in 2008 and includes:
• providing a greater range of placement options
• improving stability of placement for children and young people in care including the option of
transfer of guardianship to an approved stable carer
• improving support to carers
• better coordination and matching of child to carer within the placement process
• a move in the future to recruitment, training and accrediting carers being undertaken by the
non-government sector
• the development and implementation of individual care plans for each child or young
person in care.
Appendix A 59
60 Protecting children is everyone’s business
VICTORIA
Agency functions
The Victorian Government has a progressive and ambitious reform agenda for Victorian child and
family services. Developed in close partnership with Victorian community service organisations,
the Every Child Every Chance reforms have focused on putting children and young people frst, the
goal being to ensure that vulnerable children and young people thrive, learn and grow and are
respected and valued so that they can become effective adults. The reforms are underpinned by a
commitment to best practice. They have been informed by contemporary national and international
research and innovative approaches to strengthening vulnerable families, protecting children and
young people and promoting vulnerable children’s healthy development, safety and wellbeing –
learning that has been tailored to Victorian circumstances and needs.
Victoria’s approach recognises that all children need capable, nurturing parents and a caring child
and family friendly community. The reforms emphasise the importance of supporting parents to
play this role. Where parents experience stresses that impact on their care of children, Victoria’s frst
goal is always to work supportively with them to keep families together. If children cannot live safely
at home, work is undertaken intensively with their parents to address problems, build resilience
and enable a child to return home safely as quickly as possible. Where this is not possible, the goal
is to ensure that children experience stable and high-quality alternative care. Victoria’s approach
recognises that the protection of children cannot be separated from policies and programs to
improve children’s lives as a whole.
Major recent and planned reforms
Enshrining children’s best interests at the heart of all decision making
• The Victorian legislation builds a shared responsibility for protecting children and young people,
but also proactively promotes their development and longer term wellbeing. Harm needs to
be better understood so as to encompass accumulated harm, as well as acute crisis, or a single
serious incident. The new best interests principles provide a common framework for everyone
working under the Victorian legislation.
Building an integrated service system that is more localised, better coordinated and is responsive to
family needs
• The problems facing vulnerable families have become more complex in recent times. Substance
abuse and family violence have become the most common characteristics of families in contact
with child protection. Where children and young people are at-risk of harm, their families are
often grappling with one or more issues from amongst long-term poverty, social exclusion,
relationship breakdown, family violence, substance abuse, mental illness or disability. A one-sizefts-all approach will not work. Services need to be tailored to local conditions and needs
• There is no evidence that relying on child protection as the primary service to protect vulnerable
children and families makes a suffcient lasting difference. Victoria’s approach is based on
building a flexible and graduated range of service responses. Major system reform is necessary
to bring earlier intervention and child protection sectors together, and link them to early
childhood services to form a coordinated system
• From April 2007, Child FIRST (Child and Family Information Referral and Support Teams) were
introduced to provide an identifable entry point to services needed to support children, young
Appendix A 61
people and families where there are concerns for the wellbeing of a child or young person.
Child FIRST is now in place across all of Victoria, covering 24 catchments.
Reforms to assist Aboriginal children and families
• The recognition of the positive value of Aboriginal culture is reflected in the Best Interest
Principles governing all decision making in Victoria
• The Victorian legislation permits the transfer of gu.ardianship responsibilities from DHS to an
Aboriginal Head of an Aboriginal organisation.
• Measures are underway to build the capacity of Aboriginal Community Controlled
Organisations to provide child and family welfare services, including out-of-home care, for
Aboriginal families.
Children in out-of-home care – improving children’s stability
• A critical theme of Victoria’s reforms is improving vulnerable children and young people’s
stability in care and wellbeing, recognising scientifc knowledge about the lasting impact of
early experiences on the development of young children’s brains. This is reflected in a focus
on stability planning to address how a child will receive continuous, stable care away from
home and the use of specifed time frames. Despite reducing the number of new entrants
into out-of-home care, Victoria’s out-of-home care system is faced with a number of new and
emerging challenges into the future.
A new response to children aged 10-15 exhibiting sexually abusive behaviour
• Recognition of the inability of the criminal justice system to provide a reliable pathway into
treatment for young people who exhibit sexually abusive behaviour led to a new legislative
basis for providing a therapeutic intervention earlier to help prevent ongoing and more
serious sexual offences.
The Victorian reforms have so far contributed to a 7.2 per cent drop in substantiated abuse
between 1999-00 and 2006-07 while substantiation rates have risen 143 per cent nationally.
Reforms since 2000
The continued progress of Victoria’s broad reforms includes:
• enshrining children and young people’s best interests at the heart of all decision making and
service delivery
• encouraging the participation of children, young people and their families in the decisionmaking processes that affect their lives
• building a more integrated service system across the universal, secondary and tertiary tiers
of child, youth and family services – a service system that is localised, better coordinated and
that is responsive to family needs
• boosting earlier intervention and prevention through the use of community-based intake,
assessment and referral when families frst show signs of diffculty, and targeting family
support services at the most vulnerable groups and communities
• improving children’s stability, especially in the critical early childhood years
• strengthening the cultural responsiveness of services so that community services are
inclusive of children and young people from Aboriginal and other cultural backgrounds
• keeping Aboriginal children and young people better connected to their culture and
community when in care
• ensuring that all child, youth and family services are accountable and of high quality.
62 Protecting children is everyone’s business
WESTERN AUSTRALIA
Agency functions
The Department for Child Protection’s mission is to provide for the protection of and care for
children and young people, and to support at-risk individuals and families in resolving crises.
The Department has the central role in providing for the protection and care of children and
young people throughout Western Australia, which is best achieved in partnership with other
Government agencies and the community services sector.
Section 21(1)a of the Children and Community Services Act 2004 describes the functions of the
Chief Executive Offcer of the Department for Child Protection as including to consider and
initiate, or assist in, the provision of social services to children, other individuals, families and
communities. Directing and encouraging children and families to engage in social services to
best address their problems is one of the primary objects of the legislation.
As part of, and in addition to, its statutory functions, the Department for Child Protection
provides core service funding to the community services sector to respond to the issues and
challenges faced by vulnerable children, families and individuals. This partnership enables a wide
range of services and programs to be delivered throughout the State.
The 2007 Ford Review examined the key functions and systems of the former Department for
Community Development, resulting in a signifcant focus on child protection reform in Western
Australia. The Ford Review made 79 recommendations to address defcits in the child protection
system, and each has been addressed through a comprehensive reform program.
Following the Ford Review, the following three service areas were defned by the Department for
Child Protection:
1. Supporting children and young people in the CEO’s care.
2. Protecting children and young people from abuse.
3. Supporting individuals and families at-risk or in crisis.
These areas reflect the priority that the Department has placed on its protection and care
responsibilities through the direct provision of tertiary services. It is important to recognise
as well that it also has responsibility in supporting individuals and families at-risk or in crisis
through the delivery or contracting of secondary services.
The Department works across government and the community services sector to prevent child
abuse and neglect. This is achieved through interagency collaboration and promoting joint
responsibility with key stakeholders for responding to concerns about children’s safety and
wellbeing.
Major recent reforms
The Department is adopting and implementing the Signs of Safety framework as the basis of
consistent, evidence-based child protection practice across all Departmental child protection
services. Signs of Safety seeks to create a more constructive culture around child protection
organisation and practice. Central to this approach is the use of specifc practice tools and
processes where child protection and other professionals and family members can engage to
address situations of child abuse and neglect.
Child protection practice policy and feld worker guidelines are being streamlined and revised to
reduce unnecessary processes and be more accessible and relevant for front line practitioners.
Appendix A 63
On 1 January 2009, mandatory reporting of child sexual abuse by teachers, doctors, nurses,
midwives and police offcers came into effect.
The Department’s Foster Care Partnership was developed in partnership with the Foster Care
Association. It encompasses a partnership model and associated practice guidelines. The model
is centred frst on the child, and second, highlights the critical role of the foster family team in
providing daily protection and nurture to the foster child. The third element of the model is the
surrounding, encompassing role of the Department care team supporting the foster placement.
The introduction of health and education plans for children in care is underway. All children who
enter care will be screened for physical, developmental and educational diffculties. Once their
needs have been assessed, a plan to address these needs will be put into place and monitored on a
regular basis.
A Strategic Framework and State Plan for Supporting Individuals and Families At-risk is being
developed, to bring together the signifcant range of secondary services that the Department
and other government agencies directly provide or fund through the community services sector.
A framework that spans current and future directions will help to improve the planning and
provision of services, and remain responsive to the community’s needs.
A family and domestic violence co-location model places Senior Field Workers (Family and
Domestic Violence) with the Police Service to improve screening, information sharing and expedite
responses.
A range of initiatives to improve the safety and wellbeing of Aboriginal children and young people
in the child protection system are being implemented. They include the creation of Consultants’
Aboriginal Services to assist caseworkers to work more effectively with Aboriginal families, and
integrating Aboriginal perspectives through the Department’s learning framework.
Educational resources and guidelines to promote information sharing between as provided for
under S23 of the Children and Community Services Act 2004 are being introduced together with a
simple model for local Interagency Child Safety Teams.
Reforms since 2000
Organisational arrangements
• The Children and Community Services Act 2004 has been enacted.
• A new portfolio advisory structure has been established comprising:
• Ministerial Advisory Council on Child Protection
• Child Safety Directors Group (interagency)
• Community Sector Advisory Group
• CREATE Advisory Group (young people)
• Aboriginal Reference Group
• The State Government appointed the frst Commissioner for Children and Young People.
Aboriginal services
• Initiatives to strengthen responses to Aboriginal families and communities have been
implemented, including securing an ongoing commitment to the Strong Families interagency
case management program, Community Child Protection Workers in remote areas, Youth and
Family Engagement Workers and the Best Beginnings early childhood intervention program.
64 Protecting children is everyone’s business
• A multi-agency approach to dealing with sexual abuse in remote Aboriginal communities has
been implemented.
Care standards
• Processes to investigate and respond to allegations of abuse in care have been implemented.
• The Better Care Better Services (Standards for Children and Young People in Protection and
Care) have been implemented by the newly established Standards Monitoring Unit.
Interagency developments
• The childFIRST Assessment and Interview Team has been expanded, and provides a joint
response between the Department for Child Protection and the WA Police.
• A tripartite protocol has been signed by the Departments of Health, Child Protection and
Police regarding the reporting of sexually transmitted infections in children.
Workforce
• A comprehensive workforce development plan has been developed to comprising attraction
and retention strategies, role and position redesign, and enhanced quality assurance systems.